If the /etc/cron.allow file exists, then users must be listed in it in order to be allowed to run the crontab command. If the /etc/cron.allow file does not exist but the /etc/cron.deny file does, then users must not be listed in the /etc/cron.deny file in order to run crontab.
In the case where neither file exists, the default on current Ubuntu (and Debian, but not some other Linux and UNIX systems) is to allow all users to run jobs with crontab.
No cron.allow or cron.deny files exist in a standard Ubuntu install, so all users should have cron available by default, until one of those files is created. If a blank cron.deny file has been created, that will change to the standard behavior users of other operating systems might expect: cron only available to root or users in cron.allow.
Note, userids on your system which do not appear in /etc/shadow will NOT have operational crontabs, if you desire to enter a user in /etc/passwd, but NOT /etc/shadow that user's crontab will never run. Place an entry in /etc/shadow for the user with a * for the password crypt,ie: